Ref. Ares(2023)1028224 - 13/02/2023




                              ANNEX to note SI(2022) 436


                EU ACTION PLAN FOR THE CENTRAL MEDITERRANEAN


In 2022 irregular arrivals to the European Union have increased across all routes confirming
once more the need to find sustainable and structural European solutions to our common
challenges based on the comprehensive approach set out in the New Pact on Migration and
Asylum, including renewed action on the external dimension of migration.

Adopting the Pact in all its aspects remains the main priority. In the framework of the gradual
approach adopted earlier this year under the French Presidency, the Czech Presidency is
advancing the discussions on solidarity balanced along with responsibility, ahead of the
Justice and Home Affairs Council of 8 December 2022.

The October Justice and Home Affairs Council had addressed the recent evolutions in
the Western Balkans migratory route, which has also recently seen a large increase in
migratory movements. The discussion focused, in particular, on the visa policy of the
Western Balkan region and the key areas for cooperation with the Western Balkan partners,
identifying common initiatives to be deployed to step up European action.

Latest events have put a spotlight on the Central Mediterranean route where over 90 000
migrants and refugees arrived in 2022 departing mainly from Libya and Tunisia, and
originating primarily from Egypt, Tunisia, and Bangladesh an increase of over 50% in
comparison to 2021. Most of these arrivals reached the European Union after hazardous
journeys, and search and rescue operations at sea.

The European Union has been addressing this issue over the past years, including through
targeted outreach towards third countries (i.e., Tunisia, Egypt, and Bangladesh) to
strengthen cooperation on the fight against smuggling and targeted actions along the routes
(i.e., Niger) through the reinforcement of border and coast guard capacities, enhanced
cooperation on return and legal migration and addressing root causes. In addition, since
June this year, the Voluntary Solidarity Mechanism has been in operation to provide targeted
solidarity.

In view of the Extraordinary Justice and Home Affairs Council of 25 November 2022, the
Commission is presenting this EU Action Plan to the Council, containing 20 actions
designed to address the immediate and ongoing challenges along the Central
Mediterranean route.

 I.   Strengthened cooperation with partner countries and international organisations

The EU continues to strengthen the strategic, policy-driven programming and
implementation of its external funding to address migratory challenges, prevent irregular
departures and ensure the safety of life along all migratory routes. At least EUR 580 million
for 2021-2023 under NDICI-Global Europe and other instruments are currently foreseen to
be deployed through regional multi-country programming for migration related support to
partners in North Africa, alongside bilateral EU programmes with individual countries. This

support is strengthened further through a Team Europe approach on migration and mobility
and through the opportunities to foster economic growth, jobs and prosperity in the region
under the Economic and Investment Plan for the Southern Neighbourhood.

Based on a balanced, comprehensive, and tailor-made approach laid down in the Pact, it is
necessary to step up work to:

 1. Launch - before the end of the year - the Team Europe Initiative on the Central
    Mediterranean route to combine Member States’ activities with cooperation and
    coordination at EU level, through a whole-of-route approach, creating new opportunities
    for coordination with partner countries, as well as with relevant UN Agencies.

2.   Enhance operational coordination of the external action on migration, notably
     through MOCADEM and the EMWP, to ensure coherence of EU and national support to
     key third countries with EU migration objectives across various policy areas, as
     indicated in the Pact, such as development cooperation, security, visa, trade,
     agriculture, investment and employment, energy, environment and climate change, and
     education.

3.   Strengthen capacities of Tunisia, Egypt, and Libya, in particular, to develop jointly
     targeted actions to prevent irregular departures, support more effective border and
     migration management, and reinforce search and rescue capacities, in full respect of
     fundamental rights and international obligations.

4.   Develop and implement a new regional programme to fight against the smuggling
     of migrants and the trafficking of human beings in North Africa. This will be
     implemented in close cooperation with Member States and relevant EU Agencies, and it
     will be coordinated with the continued roll-out of bilateral Anti-Smuggling Operational
     Partnerships.

5.   Reinforce the EU/AU/UN trilateral task force for Libya by rapidly concluding the
     ongoing work on the terms of reference and setting clear and ambitious targets for 2023
     concerning: (a) enhanced use of humanitarian corridors from Libya to the EU, including
     through an enhanced use of Emergency Transit Mechanisms, and (b) stepped up
     Voluntary Humanitarian Returns from Libya to countries of origin or safe destinations,
     with the support of relevant UN Agencies. The EU will also support international
     organisations and NGOs providing support to those on the Libyan territory.

6.   Negotiate and swiftly conclude the working arrangement between Frontex and the
     EU Border Assistance Mission in Libya (EUBAM) to support the promotion of
     European integrated border management standards, situational awareness, and risk
     analysis.

7.   Intensify cooperation by Frontex with EUCAP Sahel Niger to speed up the full
     implementation of the working arrangement. EUBAM Libya and EUCAP Sahel Niger will
     also reinforce cooperation with JHA actors through the participation in EMPACT
     priorities to tackle migrant smuggling and trafficking of human beings.

8.     Consolidate cooperation with Niger through the swift implementation of the Anti­
       Smuggling Operational Partnership, the support of the EUAA through the Niger pilot
       Roadmap and the implementation of the Emergency Transit Mechanism

9.     Step up the implementation of the EUAA-Egypt Roadmap on support in relation to
       international protection in the course of 2023.

10. Coordinate joint diplomatic demarches vis-à-vis third countries to which irregular
    migrants are to be returned, in particular with a view to achieve better practical
    cooperation on readmission and to agree on readmission agreements and
    arrangements.

11. Set up quickly targeted return operations, supported by Frontex (travel document
    issuance, coordination of return flights, etc.), as well as actions aimed at reintegration
    support through development programming and implementation activities at national
    and local level in partner countries of origin in cooperation with international
    organisations. These efforts will need to be mirrored by enhanced cooperation on
    returns, addressing the bottlenecks in the national return procedures, under with the
    support of the EU Return Coordinator and within the framework of the High-level
    network on Returns.

12. Prioritise the implementation of the Regional Development and Protection
    Programme in North Africa and Niger to strengthen the protection capacity of national
    institutions for registration, refugee status determination and referral mechanisms,
    reception, durable solutions as well as norms, strategies, and operating procedures.

13. Accelerate the activation of the Talent Partnerships with Tunisia, Egypt, and
    Bangladesh to promote international mobility and circular migration based on better
    matching of labour market needs and skills.

 II.    A more coordinated approach on search and rescue

Providing assistance to any persons found in distress at sea until the point of safe
disembarkation irrespective of the circumstances that lead people to be in such situation, is
a legal obligation of EU Member States established in international customary and
conventional law as well as Union law. As part of the New Pact on Migration and Asylum, in
addition to a strong solidarity mechanism, the Commission set out a path for a common
response to search and rescue as an integral part of European Integrated Border
Management. Sincere cooperation and solidarity among Member States, as well as
coordination between all relevant actors and stakeholders, is essential to prevent fatalities at
sea, maintain safety of navigation and find sustainable solutions to current challenges. To
ensure such a coordinated approach:

14. Enhance cooperation between Member States notably by: (a) gathering knowledge
    and exchanging information on rules and practices applied by Member States as
    regards search and rescue and (b) promoting closer cooperation, best practices, and
    improved modalities for the exchange of information and coordination notably among
    coastal and flag states, including with a view to facilitating better cooperation between
    Member States and vessels owned or operated by private entities.

15. Frontex - together with concerned Member States - will carry out a targeted
    assessment of the situation in the Central Mediterranean to identify needs for reinforced
    support through joint operations, aerial and maritime surveillance, capacity building, and
    situational awareness for Member States at the external borders.

16. Promote – in close cooperation with UNHCR and IOM – dialogue between
    Mediterranean coastal states on regional approaches to search and rescue, based on
    solidarity, international cooperation, and partnership.

17. Promote discussions in the International Maritime Organization on the need for a
    specific framework and guidelines for vessels having a particular focus on search and
    rescue activities, particularly in view of developments in the European maritime
    environment.

The Commission, with the participation and support of Member States, will relaunch the
European Contact Group on Search and Rescue, inviting as appropriate partner
countries, international organisations, and stakeholders.

 III. Reinforced implementation of the Voluntary Solidarity Mechanism and the Joint
      Roadmap

The Solidarity Declaration agreed on 22 June 2022 provides a voluntary and temporary
solidarity mechanism for one year offering an opportunity for lessons learned and bridging
towards the future permanent system under the Pact. Member States need to accelerate the
implementation of the mechanism addressing the bottlenecks that have been identified so
far, enhancing flexibility, streamlining processes, and implementing the financing of
alternative measures. To this end:

18. The Solidarity Platform will revise the Standard Operating Procedures for relocation
    to achieve more efficient and quicker procedures, including to provide swift support to
    Member States receiving arrivals by sea;

19. The Solidarity Platform will match proposed projects and financial contributions to
    start implementing the alternative measures of solidarity through projects coherent
    with the activities and needs identified. The links between the voluntary solidarity
    mechanism and actions envisaged in the external dimension of migration will also be
    strengthened;

20. The EUAA will prioritise support to Member States in the swift implementation of the
    voluntary solidarity mechanism through its tools and operating plans.

The Solidarity Platform will continue coordinating the implementation of the mechanism,
identify ways of improving it and consider additional pledges as needed.

In line with the Joint Roadmap agreed between the European Parliament and the
Council, the co-legislators, with the support of the Commission, will enable the adoption of
all the proposals under the Pact on Migration and Asylum before the end of this legislative
term to ensure that a sustainable solution is put in place balancing solidarity and
responsibility.

***

The EU and the Member States will need to work jointly to achieve the goals set in this
Action Plan and to ensure its effective implementation. Reporting and monitoring through the
existing Commission and Council mechanisms will be essential.

The EU needs to remain vigilant about the developments of the other key migratory routes to
Europe including along the Turkey-Eastern route, the Western Mediterranean route, as well
as along the Western Balkans migratory route. This Action Plan may act as a model to
develop similar plans addressing the specificities of other migratory routes.